The guidelines are directed at both businesses and governments. The United Nations Guidelines for Consumer Protection begin with an allusion to the intrinsic vulnerability of consumers vis-a-vis suppliers. The general orientation of the UNGCP is universal but with the recognition that some groups or some circumstances have additional needs. Universalising infrastructure access often requires pipes, wires and trenches to be laid out, a process which may take years to take practical effect. Protection from, for example, disconnection during certain times and for certain groups, can be a useful protection especially when it is universal. The policy dilemmas become less acute when access is universal. There are mechanisms to encourage it such as the European Union concept of Services of General Economic Interest, which can reward service providers for taking responsibility. The broad remit of the UN Guidelines indicates a concern with issues of social equality and services intended to provide universal safety nets.